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AN INNOVATIVE APPROACH TO LOCAL GOVERNMENT NETWORK MANAGEMENT

Peter Clewer: Asset Management Officer (), Mornington Peninsula Shire

Amy Wade, Manager Axim - A Downer EDI Works Business

Abstract The Mornington Peninsula Shire in Victoria has amalgamated routine road maintenance activities and traditional annual reseal/rehabilitation capital works activities into the one long-term integrated road network management contract. The ‘Safer Local Roads’ (SLR) is a 15 year outcome based maintenance contract incorporating annual performance reviews. This is an innovative approach to Road Network Management for Local Government, the scale of which has not been previously undertaken in Australia.

The activities are being provided as part of a Quality Relationship (partnership) between the Shire and Downer EDI Works, with a smooth monthly service charge. The aim of the ‘Safer Local Roads’ contract is to fully integrate all road network management services into one service provision to obtain greater value for money, improve services, obtain a greater certainty in service delivery, and implement a sustainable accelerated program of capital works deliveries.

Various specific performance measures exist to enable contract performance to be assessed, and this paper details the development of methodologies, processes and calculations for measurement of one of the key indicators, being road pavement performance for sealed roads. These were jointly developed between the Shire and Axim a Downer EDI Works business specialising in infrastructure asset management.

Introduction The Mornington Peninsula Shire until recently accelerated program of capital works ran a fairly traditional model of local road projects, greater certainty in service delivery network management. This was achieved by from having long term financial planning internally determining and supervising their capabilities and to integrate all road network annual reseal/rehabilitation works program management services into the one service which was undertaken by external provision and hence achieve greater cost contractors annually, and also having routine savings, a 15 year contract for total road road maintenance services provided by an network management was entered into with external service provider over a 10 year Downer EDI Works. contract term.

Whilst being relatively successful in terms of reducing existing rates of deterioration of the The resultant ‘Safer Local Roads’ (SLR) sealed network condition over a period of contract is an outcome based contract relying time, the Shire decided to expand their upon several performance indicators used to outlook to seek an alternative innovative measure contract performance. This method of achieving greater efficiencies and approach has previously been undertaken for value for money for their community from road network management at State level, but their road network management services. In not at this scale at the Local Government an effort to gain funding for a sustainable level in Australia. www. nams.au .com National Asset Management Strategy Australia

expectation and provision of services could One of the challenges confronted was to be proposed. determine a process to enable the Shire to monitor sealed pavement performance throughout the contract term and to develop a Routine Road Maintenance repeatable methodology of condition Performance Indicators measurement so that regular reviews of sealed network pavement performance could Contract provisions that already existed prior be undertaken to ensure desired outcomes to the SLR in the Shire’s Sustainable were being achieved. Pavement condition is Infrastructure Maintenance Services (SIMS) more easily monitored, measured and contract for routine road maintenance captured utilising high speed automated data services were developed in consultation with capture vehicles on State networks as these the community through nearly 30 workshops roads are more stable and consistent in held throughout the Shire prior to the nature than at local government level, where tendering and start of the SIMS contract in several variables and impediments exist April 2003. within the network that provide greater challenges. These service levels were reviewed at the time of the introduction into Victorian law of The relationship between the Shire and the Road Management Act in 2004. Downer EDI Works includes Axim a Downer EDI Works business specialising in (The purpose of the Road Management Act is infrastructure asset management. From the to establish a management system for the outset a close relationship formed between road management functions of a road the Shire and Axim to jointly develop and authority which is based upon policy, review the pavement performance operational objectives and available measurement processes to achieve the resources and also establishes decision desired outcomes. making processes in relation to standards of construction, inspection, maintenance and repair). Existing Network Attribute Data As a result of the Road Management Act Prior to the development of pavement requirements, the existing Shire local road performance indicators, the Shire in keeping network hierarchy was reviewed and updated with the partnership principals of the SLR, accurately reflect a functional provided Downer EDI Works access to all concept, and service levels (inspection historical council records of road condition frequencies, intervention levels, and data and pavement and response times) were reviewed and adopted performance data during the tender period. according to each new individual hierarchy. The existing data included recently acquired ARRB surveys where a 10% sample of the These existing routine maintenance service Shire sealed local road network had been level provisions within the existing SIMS surveyed and analysed to produce indicative contract were absorbed directly into the SLR distributions of AADT figures, network age, contract. roughness, rutting, texture depth and pavement deflection. Also an indicative distribution of remaining pavement structural Objectives of Pavement Performance lives based upon FWD data and predicted Indicators future loadings was undertaken and made available. Based upon this collection It was determined that the SLR contractual of recent and historical data, a very clear requirement regarding sealed network insight into existing network attributes and pavement performance was for the existing predicted future behaviour could be pavement condition as at the commencement determined to ensure that an achievable of the contract to be maintained for each pre- defined road hierarchy classification for the15 www. nams.au .com National Asset Management Strategy Australia

and other impediments (speed humps, year term of the contract. In short, the , LATM treatments etc.) visual network was to be handed back to the Shire condition assessments using an accredited at the end of the contract period in the same third party data capture organisation were condition as when the contract commenced. utilised in these instances. Visual condition defects to be assessed were clearly defined This required a benchmark assessment of in accordance with defect descriptions the network to be undertaken in order to indicated in A Guide to the Visual determine the agreed existing service level of Assessment of Pavement Condition the road pavement and to enable Downer (Austroads, 1987). EDI Works to have a better understanding of current network conditions. This also enabled Downer EDI Works to determine an Pavement Defect Assessment Surveys appropriate financial model necessary to meet contract requirements, subject to Pavement defect types to be assessed were council approval. selected by mutual agreement following detailed consultation between A methodology of calculating a sealed representatives of the Shire and Axim. pavement performance indicator based upon surveys of network pavement conditions was By utilising the flexibility of the Deighton required. This would be auditable and ‘dTIMS CT’ Pavement Management System repeatable to enable future reviews of implemented by Axim, as ‘Authorised contract performance, and appropriately Deighton Consultants’ in Australia, the rewarded the efforts of Downer EDI Works. opportunity was taken to address previous constraints experienced by the Shire by using The resultant performance indicator also an “off the shelf” Pavement Management needed to accurately reflect the existing System. By identifying these constraints and pavement condition, whilst enabling the incorporating into the PCI the attributes for possibility of raising service level measurement that better reflected local requirements in the future (subject to conditions and concerns, a more meaningful increased funding negotiations) should index was able to be achieved. council desire. Table 1 – Condition Parameters for roads able to have automated surveys undertaken. (PCI) Survey Defects or Attributes It was determined that a Pavement Condition Type Index (PCI) was to be calculated and used as a measurement of sealed pavement Automated Roughness (NAASRA counts) performance. Automated Rutting (mean depth) The PCI was to be determined based upon the measurement of several existing road Automated Surface Texture (texture depth) pavement defect types, aggregated together and appropriately weighted to produce one Visual Crocodile Cracking (% area) overall condition index figure for each defined road hierarchy. Visual Flushing (% area)

Maximum repeatability was required from Database Surface Age (years) Allowances condition surveys to enable accurate future made for surface type. monitoring, and so surveys using multi-laser profilometer technology were undertaken wherever possible. As many local residential roads cannot have profilometer surveys undertaken due to issues of speed, length www. nams.au .com National Asset Management Strategy Australia

Table 2 – Condition Parameters for roads not PCI Calculation Methodology able to have automated surveys undertaken. To briefly summarise the PCI calculation Survey Defects or Attributes methodology: Type Each defect or attribute had its data Visual Crocodile Cracking (% area) converted to a length weighted average per 100m or remainder thereof of each road Visual Flushing (% area) surveyed.

Visual Stripping (% area) A score out of 100 for each 100m length was then calculated, 100 being pristine (expected Visual Pavement Defects (% area) result from a new road construction). Each defect or attribute score had its Database Surface Age (years) Allowances contribution towards the total aggregated PCI made for surface type. value weighted according to the extent to which it contributed towards the nine service

objectives of the SLR contract. A summary of defects measured and the A sensitivity analysis was conducted to refine road hierarchies and applicable network the overall contribution of each defect lengths for each road hierarchy can be seen category and weighting to be applied in Table 3 Appendix A. between attributes in order to achieve a Defect data assessed using automated meaningful index that reflected the perceived means was collected using a Multi Laser network condition for each hierarchy. Profiler in accordance with ARRB TR Test The aggregated PCI for each 100m section of Methodologies. Data was collected in both road was then available to be used in the prescribed and counter directions on Arterial calculation on a length weighted basis of and Collector Roads, and in one direction each individual road hierarchy. only on Local Access Roads, and was aggregated into 100m intervals. The resultant Table 4 – Example of roughness indices data was supplied in accordance with clearly determination for road hierarchies A, B and defined database file reporting formats. C1. Data required from Visual Condition NAASRA Counts Indices assessments were collected by way of GPS enabled PDA devices at 25m intervals in < 70 100 urban areas and at 100m intervals in rural areas. The data was downloaded to >= 70 and < 90 100 - 75 appropriate project data centres in batch files by means of daily GPRS transmissions direct >= 90 and < 120 75 – 50 from the PDA device on site, and transferred over a mobile phone network. Data integrity >= 120 and < 150 50 – 25 checking, condition data repeatability information and batch conversion into >= 150 and < 200 25 – 0 required field formats for upload into the GIS and other databases was conducted. >= 200 0

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demarcation issues or agreements for transfer of responsibilities.

Figure 1 – Example of formula used to Existing roads also may be unable to be calculate PCI for 100m section of hierarchy A assessed for defects due to road closures or road. civil works in progress at time of assessment etc. PCI = 0.65 x [(0.3 x roughness) + (0.15 x rutting) + (0.3 x (texture + flushing)/2) + (0.25 Reseals or rehabilitation works that are x cracking)] + 0.35 x [surface age] funded externally to the SLR contract will also affect individual road conditions through no A summary of calculated Benchmark PCI for effort from Downer EDI Works. each road hierarchy can be seen in Figure 2 Appendix B. All of these issues combine to either improve or deteriorate the overall PCI figure achieved at time of condition assessment, and prevent Pavement Performance Reviews an accurate comparison of PCI in order to A full network condition assessment and measure contract pavement performance. pavement performance review based upon identical processes and calculation These issues can advantage or disadvantage methodologies will be undertaken on every Downer EDI Works in their effort to meet third year of the contract, and again in the target PCI levels, and as such need to be final year of the contract and the next isolated from pavement performance scheduled pavement condition survey is calculations. planned for the first quarter of 2009. To allow for these factors, the benchmark This will ensure that levels of pavement PCI calculated at the commencement of the performance are regularly monitored and that contract (the target PCI for the first pavement requirements are being achieved. Contractual performance review year) is valid only until provisions are in place to address situations that review year. Only the exact network that where performance levels are not being formed the initial defect assessments is used achieved, and plans of rectification works are for comparison purposes. Once the second to be submitted and implemented to resolve three year review period commences, the service level deficiencies at Downer EDI growth or shrinkage assets are included in Works undertaking should it become calculations and a new target PCI is necessary. calculated for comparison in the following review year.

Network Growth A simplified diagram indicating the process Several issues impact upon the ability of for PCI comparison in pavement performance performance review measured PCI’s being review years can be seen in Figure 3 able to be directly compared with required Appendix C. target PCI’s. The council maintained local road network is subject to a degree of variance as opposed to the more defined Conclusion state or federal road networks. An innovative approach towards total integrated road network management within One issue is network growth due to newly the Mornington Peninsula Shire has provided constructed roads resulting from the opportunity for considerable gains to be subdivisional developments. made on the behalf of the community, in terms of more cost effective service delivery, Also, network growth and shrinkage can and a sustainable delivered accelerated result from roads having responsibilities capital works program. transferred between authorities as a result of www. nams.au .com National Asset Management Strategy Australia

Essential to the success of the Safer Local Roads road network management contract is Due to the implementation of Safer Local the quality relationship that has been Roads, the Mornington Peninsula Shire, developed between the Shire and Downer Downer EDI Works and the Mornington EDI Works. This ‘partnership’ approach Peninsula community look forward to a ensures that both parties are focussed upon successful and productive long term achieving the same goals and that any issues relationship. identified during the contract term are addressed and solved jointly to the satisfaction of both parties and that potential References risks are also shared. Austroads (1987). A Guide to the Visual Assessment of Pavement Condition , AP- By allowing Downer EDI Works access to all historical council records of road condition 8/87, Austroads, Sydney. data and pavement and road surface Road Management Act (2004), Act No. performance data prior to tender, a very clear 12/2004, Version No. 017. insight of network attributes and expected behaviour could be determined to ensure that an achievable expectation and provision of services could be proposed.

This same quality relationship model has ensured that pavement performance measurement methodologies and resultant Pavement Condition Index calculations have been developed, documented and undertaken in total agreement and in a transparent manner.

With clearly defined expectations and pavement performance measures, the service level of the network can now be monitored and assured for the term of the contract at an overall cost saving to the community. Downer EDI also now has, subject to meeting well defined performance reviews, a long term commitment from the Shire for undertaking their road network management services.

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Appendix A Table 3

Summary of Defect Assessments

Road Condition Description Survey Type Defects Measured Hierarchy Length Survey Category

A Arterial Automated & Roughness 203km Visual (Automated Rutting data collected in Texture Depth both directions) Flushing Crocodile Cracking

B Collector Automated & Roughness 141km Visual (Automated Rutting data collected in Texture Depth both directions) Flushing Crocodile Cracking

C1 Local Access (able Automated & Roughness 248km to undergo Visual (Automated Rutting Automated Testing) data collected in Texture Depth one direction only) Flushing Crocodile Cracking

C2 Local Access (Not Visual Stripping 651km able to undergo Flushing Automated Testing) Pavement Defects Crocodile Cracking

D Car Parks & Visual Stripping 24km Limited Access Flushing Pavement Defects Crocodile Cracking

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Appendix B

Figure 2

Road Category Benchmark PCI’s

LENGTH WEIGHTED AVERAGE BENCHM ARK PCI (CAT A, B, C1, C2) AREA WEIGHTED AVERAGE BENCHM ARK PCI (CAT D)

89 89 100 81 90 77 73 80 70 60 50 PCI 40 30 20 10 0 A B C1 C2 D ROAD CATEGORY

Appendix C Figure 3

Review Years – PCI Comparison Process

BENCHMARK REVIEW REVIEW YEAR 2005 YEAR 2008 YEAR 2011

BENCHMARK 2005 2008 REVIEW PCI 79 PCI 79 344 km 344 km

2008 + GROWTH 2011 REVIEW PCI 81 PCI 81 352 km 352 km

2011 + GROWTH PCI 83 361 km www. nams.au .com National Asset Management Strategy Australia

Author Biography Peter Clewer

Asset Management Officer (Roads) – Mornington Peninsula Shire

Peter is the Asset Management Officer (Roads) for the Mornington Peninsula Shire in Victoria. Peter has been involved in the survey and engineering fields for many years with experience in State Government, Local Government and Water Authorities. He has also been employed in a short term overseas assignment as part of an Australian Government Overseas Aid Project, assisting with the implementation of a Land Information System.

More recently Peter has been responsible for the Road Asset Management functions within the Mornington Peninsula Shire, with particular emphasis in customising the Deighton ‘dTIMS’ Pavement Management System in conjunction with Axim to achieve optimal capital renewal outcomes on locally maintained roads.

Peter is currently assisting in the implementation of processes and calculation of methodologies to enable sealed road pavement condition monitoring to be undertaken to enable regular reviews of pavement performance requirements within the ‘Safer Local Roads’ road network management contract.

Amy Wade

Manager Axim - A Downer EDI Works business

Amy is passionate about Infrastructure Asset Management and is utilising her skills and knowledge to assist asset owners develop sustainable processes for the effective long term management of their assets.

Amy is an experienced road asset management practitioner having worked for several years with the RTA NSW following the completion of her degree from the University of Newcastle and has also completed a Master of Engineering Management from the University of Technology, Sydney.

In her role in Axim, Amy is responsible for managing a diverse team of professionals consisting of Assets, Pavement and Software Engineers to deliver Asset and Pavement solutions to Local Councils and Infrastructure Service Providers by combining her practical skills and knowledge with her interests in Asset & Pavement Management Systems.

On this project, Amy has been actively involved with providing support at Mornington Peninsula Shire since December 2002 and has thoroughly enjoyed her experience working closely with Peter Clewer. Amy has many years experience dealing with a varied client base in the asset management field, with particular emphasis in the pavement management area.